ARC 3068-11

SHELTER OPERATIONS
INSTRUCTORS MANUAL
Rev. September 2005

CONTENTS
Fact Sheet Information
ARC 3068-11

Course Purpose .................................................................................. 3

Learning Objectives ............................................................................ 3
Participants ......................................................................................... 3
Length ................................................................................................ 3
How the Course Is Scheduled ............................................................. 3
Instructors .......................................................................................... 4

Course Content

INSTRUCTOR MANUAL FORMAT ............................................... 5

I.
INTRODUCTION AND PURPOSE OF STAFF SERVICES .. 1-1
A. Instructor Introductions ........................................................ 1-1
B. Course Purpose ................................................................... 1-2
C. Objectives ........................................................................... 1-3
D. How This Course is Organized ............................................. 1-3
E. Participant Introductions ...................................................... 1-5
II. OVERVIEW OF SHELTER OPERATIONS ............................ 2-1
A. Values for Shelter Workers .................................................. 2-2
B. The Shelter Cycle ................................................................ 2-3
C. STEP 1: Preparedness ........................................................ 2-4
D. STEP 2: Disaster Occurs .................................................... 2-8
III. ORGANIZING THE SHELTER ............................................... 3-1
A. Functions on a Shelter Team ................................................ 3-1
B. STEP 3: Pre-occupancy Inspection ..................................... 3-3
C. Staffing a Shelter .................................................................. 3-4
D. Registration ......................................................................... 3-5
E. STEP 4: Shelter Opens ....................................................... 3-5
F. STEP 5: Clients Arrive ........................................................ 3-6

ARC 3068-11
Rev. September 2005

Shelter Operations
INSTRUCTORS MANUAL

Instructor Resource

IV.

OPERATING THE SHELTER .................................................. 4-1

A. The Three Rs of Sheltering ................................................... 4-2
B. The Importance of Communication ....................................... 4-4
C. Communication With the Chapter ......................................... 4-5
D. Working With the Media ...................................................... 4-7
E. Forms ................................................................................. 4-8
F. Transitioning to Longer-Term Sheltering ................................ 4-9

V.

CONCLUDING SHELTER OPERATIONS ............................. 5-1

A. STEP 7: Closing the Shelter ................................................ 5-1
B. STEP 1: Preparedness ........................................................ 5-2

VI.

SUMMARY ............................................................................. 6-1

INSTRUCTOR RESOURCES CONTENTS .................................... 1

A. List of Materials ......................................................................... 3
B. Suggested Newsprint ................................................................. 5
C. Course Schedule ....................................................................... 7
D. Answers to Summary Exercise ................................................... 9

Copyright 2005 American National Red Cross. All rights reserved

ARC 3068-11

Shelter Operations
FACT SHEET
Revised September 2005
Course
Purpose

The purpose of this basic level Disaster Services training is to prepare

volunteers and employees of the Red Cross and other agencies to
effectively and sensitively manage shelter operations as a team while
meeting the needs of people displaced as a result of a disaster

Learning
Objectives

After completing this training, participants will be able to

Describe the procedures for opening, operating and closing shelters.
Explain ways to demonstrate quality service.
Organize available human resources as a shelter operations team.
Identify resources available to assist shelter workers.
Organize the physical facility and material resources to meet the needs
of the people in the shelter.

Course
Participants

Participants will be volunteers and employees of the Red Cross and other
agencies and community leaders who will be working on shelter
operations teams.

Course
Prerequisites

Required:

Course
Length
How the
Course is
Scheduled

Successful completion of one of the following courses:

Community Services Overview (ARC 3068-6)

Mass Care: An Overview (ARC 3068-1)

This course is three hours in length. Full attendance of the entire course
is required to receive a certificate of completion.
The sponsoring Red Cross unit will schedule this training for a suggested
minimum of four participants. The maximum number of participants is
limited only by the ability of the sponsoring unit to provide a training
facility to comfortably accommodate them and to maintain the
recommended instructor participant ratio of one instructor for every eight
to ten participants.

Instructors

This course will be taught by a team of authorized Disaster Services

instructors who have Community Services experience in local, service
area or larger shelter operations. Instructors must be familiar with current
disaster regulations and procedures, Red Cross agreements with other
agencies that provide disaster relief and the disaster plan of the local
service delivery unit. When scheduling instructors, consider that there
should be one instructor for every eight to ten participants.

ARC 3068-11
September 2005

Instructors Manual Format

INSTRUCTORS MANUAL FORMAT

This instructors manual provides the course content and methods of

Use newsprint.
(text appears here.)

instruction as well as accompanying participant resources to be used in

presenting Shelter Operations (ARC 3068-11).

Show transparency.
(text appears here.)

The left column consists of the content to be presented. Where

appropriate, you may want to change a statement to better suit your

style of presentation or the classroom situation, but be sure to stay

within the context of the material and the framework of the learning
Show videotape.

method.

Use computer.
NOTE: You will also find instructor notes marked in italics in the
left column. Examples of these notes include the unit objectives,

Refer participants
to attachment.

reminders, and instructions for an exercise. They are provided to

assist you in preparing for the course and are not intended to be

Refer to materials
(forms, etc.)

read to participants.

The right column uses icons to indicate the methods of instruction to be

Res.
A

used or resources available to support that section. Present the content

Indicates an
Instructors
Resource.

using lecturettes unless an icon indicates otherwise. The icons are

presented on this page. When prepared newsprint is used, you will also
find an abbreviated version in the right column.

Conduct an activity.

Pose a question to
the group.

Take a break.
Shelter Operations
Instructors Manual

Instructors Manual Format

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Shelter Operations
Instructors Manual

Segment

I.

Introduction and Purpose of Training

INTRODUCTION AND PURPOSE OF TRAINING

Time: 30 minutes

A. Instructor Introductions

Welcome to the
Shelter
Operations
Your instructors are-1

NOTE: While participants are waiting for class to begin, encourage

them to read page 1 of their workbooks.

Welcome to the Shelter Operations course. Thank you for taking the
time to attend todays class.

NOTE: When a chapter leader is available, have that person

introduce the instructors and comment on the importance of this
course activity. After the instructors are introduced themselves,
cover the following housekeeping details:

Before we begin to discuss the role and responsibilities of the Red

Cross in opening shelters, I want to cover some housekeeping details and
then the review the purpose and learning objectives of this course.

1.

Breaks

2. Arrangements for snacks (if any)

3. Smoking regulations
4. Location of restrooms
5. Emergency exits
6. Sign-in sheet, Course Record Addendum (Form 6418A)
Shelter Operations
Instructors Manual

Segment 1-1

Segment

B.

Introduction and Purpose of Training

Course Purpose
Regardless of the emergency, when large groups of people are

temporarily displaced from their homes, the American Red Cross responds by opening and operating shelters. The Red Cross provides
shelter for disaster victims in public and private facilities, such as schools,
Churches, and community centers.

The purpose of a shelter is to provide a safe place for people to stay

during an emergency, with access to various types of support and information. In some cases, people leave their homes as a precautionary measure. These people usually return home as soon as possible after the
emergency has passed. In other cases, when their homes are damaged as
a result of the disaster, they may continue to live in the shelter until alternative housing can be found, or until the home has been repaired. After the
shelter residents make other living arrangements, the shelter is closed.
Running a shelter requires a skilled team of people like you who are ready
to help.

The purpose of the course is to prepare you to effectively and

sensitively manage shelter operations as a team, to meet the needs of
people displaced as a result of a disaster. We will focus in this course on
the typical types of disaster that are administered out of your local chapter.

Segment 1-2

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Segment

C.

Introduction and Purpose of Training

Objectives

After completing this course, participants will able to

1.

Describe the procedures for opening, operating and closing shelters.

2.

Explain ways to demonstrate quality service.

3.

Organize available human resources as a shelter operations team.

4.

Identify by resources available to assist shelter workers.

5.

Organize the physical facility and material resources to meet the

Page 53

needs of people in the shelter.

D.

How This Course is Organized

This course builds on the information presented in Community Services

Overview (previously Mass Care: An Overview). Some of the material
may look familiar to you. The material we introduced in the overview
course will be supplemented with more details and specific procedures
and tools you will need as a shelter worker.

To accomplish our objectives, the Shelter Operations course uses a

video to introduce four course segments. The video footage will give you
an opportunity to see Red Cross workers in action and hear in their own
words ways to ensure that the needs of the clients are met. You also have
a workbook. The first part of your workbook titled, In the Field,
contains specific information and procedures that will help when you work
in a shelter. The second half of your workbook, Putting It All Together,
will be used during todays class. You will find that your workbook

Shelter Operations
Instructors Manual

Segment 1-3

Segment

Introduction and Purpose of Training

contains additional information and reference material beyond what we

cover in class. This material is critical for running a successful shelter.
Review it carefully after you complete this class and take it with you if you
are called for a shelter assignment. As the climate of disaster response
changes the Red Cross adapts to the needs of our clients and disaster
workers. Since the Shelter Operations course was created, vocabulary
and the nature of some relationships have changed. There are some terms
that no longer apply in this course. For example, what was once referred
to as Mass Care is now known as Community Services. As they come
up, I will draw your attention to them. Please feel free to ask me any
questions as they come up.

In this course we will learn the basic skills and procedures used by
shelter workers. There is a second course called Shelter Simulation,
which the chapter has scheduled for ______________. In the simulation
you will have a chance to practice what you have learned in this course
and ask any questions about the resource material that we will not cover
today.
Here are the topics we will cover today:
Segment 1:

Overview of Shelter Operations

Segment 2:

Organizing the Shelter

Segment 3:

Operating the Shelter

Segment 4:

Concluding Shelter Operations

On the last page of your workbook is a course evaluation form. If

available, you can use form 5898B for the evaluation. This form is

Segment 1-4

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Segment

Introduction and Purpose of Training

important because it tells us how well the course is meeting your needs
and gives us feedback on our teaching skills. Please take a few moments
now and complete the first three questions.

NOTE: Allow time for completion of the form.

E.

Participant Introductions
Lets learn more about one another, using a tool that helps Red

Cross workers learn more about clients who come to a sheltera registration form.

NOTE: Distribute Disaster Shelter Registration forms to partici-

Form 5972

pants.
Lets look over the form and talk about important items on the form.
Obviously, the name, address, and phone numbers are important. The
total family members registered and sheltered are important so there is an
accurate accounting of who has registered. The box that refers to medical
issues is important as well so that appropriate referrals can be made to
Health Services or Mental Health Services.
Please work with a partner and interview each other using Disaster
Shelter Registration (Form 5972). In addition to completing the information on the form, show, in the post-disaster address section, your
partners position with the American Red Cross or another agency. There
is space on page 54 of your workbook to take additional notes.

Page 54

Shelter Operations
Instructors Manual

Segment 1-5

Segment

Introduction and Purpose of Training

NOTE: When all interviews are completed, each participant should

introduce his or her partner giving their NAME and POSITION.
Review the form with participants and explain how the form and the
information on it are used.
The shelter registration form

Helps workers know how many people are staying in the shelter,
which allows for better planning, i.e. How many workers will be
needed? How much will be required in the way of food or supplies?

Tells workers who is staying in the shelter. Sometimes family members who were not in the disaster will try to locate loved ones who
many have been affected by the disaster. One copy of this form goes
to Welfare Information. As you may remember from Introduction to
Disaster, that is the activity that is responsible for helping to locate
missing family members.

Helps workers determine whether a client may need additional

services. Information in the medical problem column may signal a
referral to a Health Services nurse or a Mental Health Services
worker if one is available. A copy of this form is available for use by
the Client Casework Staff to coordinate action on cases.

As you can see, it is important that we collect this information. But how
does it feel to have someone ask you these questions? Some of them are
rather personal. Now imagine you have just experienced a disaster. You
may not know the status of your family members, home, or possessions,
or you may have suffered losses. You walk into a Red Cross shelter, and
the first thing you are asked to do is to register. How would you want to
be treated at the registration desk? At some point, you may have the

Segment 1-6

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Segment

Introduction and Purpose of Training

opportunity to register clients. Think back to this course, and remember

how you felt. Be just as sensitive with each and every client as you would
want someone to be with you. Being sensitive to the needs of the clients is
the first step in providing quality service. We will learn many other ways
to provide quality service throughout the rest of this course.

Shelter Operations
Instructors Manual

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Segment

Overview of Shelter Operations

II. OVERVIEW OF SHELTER OPERATIONS

Time: 35 minutes

As a result of this segment, participants will be able to State the values for shelter workers.
Describe the demographics of average shelter operations, the
types of shelter operations, the community response to disaster,
and the Red Cross role in shelter operations.

In Community Services Overview (Mass Care): An Overview we

learned that the basic commitment of Community Services is to take care
of the eating and sleeping needs of the people affected by disaster on an

Page 55

interim basis, while they are making other arrangements for their recovery
or until they can return home. Shelter operations play a tremendous role
in fulfilling this commitment. Lets watch the first segment of our videotape, which gives us an overview of the importance of providing shelter to
our clients. As you watch the tape you may want to take notes or jot
down questions on page 55 in your workbook. Note the terminology in
the video. Because video has not been updated to use the new terminology, you will hear the old terms referenced.

NOTE: Show segment 1 of video, Overview of Shelter Operations. Do you have any questions about the video?

Shelter Operations
Instructors Manual

?
Segment 2-1

Segment

Overview of Shelter Operations

NOTE: Pause for questions and clarify as needed.

A.

Values for Shelter Workers

The Red Cross has a long history of providing shelter to the victims of
disaster. From our commitment in Community Services, we have devel-

Page 56

oped a set of values that guide our conversations and actions as shelter
workers. Our values are as follows:

Poster 955

Ensure that the shelter is a safe place. Our first and foremost
concern is the safety of clients and workers. Out of this commitment,
come many of the rules we ask clients to follow.

Respect clients. Treat all clients the way that you would want to be
treated. We respect the diversity among the people in our shelters.
Privacy is another aspect of respect. We show respect by creating a
place where clients can share information in confidence. To ensure
confidentiality, we seek to protect the privacy of our clients.

Provide services equally to all clients. We dont discriminate in

any way when it comes providing shelter services. What we make
available to one client, we make available to all clients. This also
means that for people with disabilities, we still provide the same types
of services available to other clients. We seek ways to provide those
services in ways that are most useful to those who need them.

Enable the clients to make other arrangements. We treat each

shelter resident as an individual who is ultimately responsible for his
or her own recovery. We assist clients by providing them with
information about the services of the Red Cross and other agencies
that may help them with their recovery plans.

Segment 2-2

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Overview of Shelter Operations

Use resources wisely. We are not a government agency. Most of

our organizations resources come from donations of peoples time
and money. It is important that we try to provide our services in the
most efficient way while still maintaining quality service to our clients.
Out of these values we have developed the procedures that you will

learn about today. Throughout this course, we will show you tools and
resources that will help you with the situations and issues that may arise
when you are working in a shelter. Should you ever be uncertain about
what course of action to take, use these values to reason through your
choices. They will point you in the right direction.

B.

The Shelter Cycle

We have discussed our commitment and values as shelter workers, now

lets discuss how we actually go about providing shelter to our clients. If
you will look on page 57 or at the Shelter Cycle poster, you will see the
seven main steps in the process of sheltering. There are some actions that
we take prior to a disaster occurring in order to be better prepared. We
can group those into Step 1 as preparedness activities. Once the Red

Page 57

Cross is notified that a disaster has occurred (Step 2), there are a series of
conversations and actions that lead up to the opening of a shelter (Steps 3
and 4). Once clients arrive, there are tasks necessary to keep the shelter
operating (Step 5). In Step 6, we provide clients with information and

Poster 955

help get them connected to the resources necessary to return to their

homes or make other arrangements. Finally, after the residents have made
arrangements for longer term housing, we close the shelter (Step 7). We
will spend the rest of this course looking at each of these steps in detail.

Shelter Operations
Instructors Manual

Segment 2-3

Segment

C.

Overview of Shelter Operations

STEP 1: Preparedness

Every American Red Cross chapter is responsible for pre-disaster preparedness within its jurisdiction. Using the chapter disaster response plan
and annexes as guides, chapters explore issues such as

The types of hazards that could pose a threat to this community.

The people who might be affected.

The types of needs would they have.

Red cross preparation to meet client needs as quickly and effectively

Page 58

as possible.
Based on this analysis, at least seven important goals should be
achieved for Community Services:

Hazard analysis and demographic information should be used to

predict the people who might be affected by a disaster and need
shelter. This will allow you to project what needs you should
prepare for, e.g., the need to have Spanish-speaking staff or an
interpreter.

Written agreements should be obtained from school districts, governments, religious organizations, or other groups for the use of their
buildings as shelters in time of disaster.

A pre-disaster survey of designated buildings should be conducted

to compile basic information about potential shelter sites. This

Segment 2-4

ARC 3068-11
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Segment

Overview of Shelter Operations

information can then be made available to the shelter staff when they
are assigned to the facility.

Sufficient staff should be identified and trained to initiate and sustain

a shelter operation for a minimum of 72 hours.

Vendor accounts should be established to provide food and other

supplies for Community Services operations.

The chapter should prepare several shelter kits. The kits should
always be ready to go and should contain the supplies needed to
open and run a short-term shelter. For a list of suggested items, see
page 47 of the In the Field section of your workbook.
Page 47

Regular training should be held to prepared shelter staff and management for proper shelter operations.

1.

Demographics of Shelter Populations

As a part of disaster preparedness, we need to know who is likely to

come to the shelter. Each chapter will develop specific information
for the disaster response plan about the people living within their
jurisdiction, but in general, there are several demographic factors that
help us predict who might need a Red Cross shelter. The type of
disaster, the size of the disaster area, the amount of warning time, the
history of past emergencies, the location of the shelter, and the
accessibility of evacuation routes all influence who will come to stay at
your shelter.
It is difficult to provide exact information about evacuation behavior.
A rule of thumb is that persons seeking public shelter do not have other

Shelter Operations
Instructors Manual

Segment 2-5

Segment

Overview of Shelter Operations

options, such as extended family with whom they can stay or resources
such as insurance to pay for hotel accommodations. Each community will
vary in who seeks public shelter. Reviewing which residents of your
community live at or near the poverty level is one indicator of the likely
residents of your shelter. By participating in community disaster planning,
your chapter will be able to network with other social service agencies to
obtain additional insights into the groups that may seek public shelter.

In addition to persons evacuated because of the disaster, the Red

Cross may also provide shelter for disaster workers, rescue workers,
and similar groups when housing is unavailable through the organizations
they represent. This is more likely to occur in very large disasters.

2.

Types of Shelter Operations

Once we know what types of disasters are likely to occur in our chapter
jurisdiction, we should look at the nature of shelters that may be required.
Page 59 of your workbook reviews potential shelter requirements for
various disasters.
Page 59

NOTE: Briefly review chart. Ask for questions and answer accordingly.

What are some of the hazards that could cause people to evacuate
their homes and create a need for shelter in this area?

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Overview of Shelter Operations

Hazards

NOTE: Have the group brainstorm the hazards. Record responses

on newsprint. Comment briefly on the sheltering requirements that
could be created by each hazard and the history of the units response

to the hazards.

3.

Establishing Partnerships
In communities across the country, the Red Cross is one of the

primary organizations responsible for providing shelter to the victims

of disaster. But we dont work alone.
Page 60

Prior to the disaster occurring, we establish agreements with schools,

governments, religious organizations, and other groups to use their facilities. For each potential shelter site, we complete a facility survey by
meeting with a representative of that organization at the site. The facility
survey provides us with pertinent information about the building such as
dimensions, bathroom/shower facilities, accommodations for persons with
disabilities, and floor plan. We formalize these agreements by drawing up
a statement that explains how the Red Cross and the other organization
will work together should we use the buildings as a shelter.

Often other organizations will lend us their personnel, or provide use

with food, equipment, or materials when a disaster occurs. We may also
establish agreements with vendors to supply these things.
We may also share information with other organizations. Red Cross
units that foster a close partnership with local emergency management and

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Instructors Manual

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Overview of Shelter Operations

other community-based organizations consistently operate more effective

shelters than those that do not foster such relationships. The local Red
Cross unit and the local emergency managements staff can provide
valuable information about past sheltering requirements.

D.

STEP 2: Disaster Occurs

When a disaster occurs, the chapter is usually notified by local emergency

management officials such as the fire or police departments. Then the
chapter goes into action. For many chapters the Disaster Action Team
will respond first and assess the situation. If it appears that a shelter will
be needed, the chapter will, in conjunction with its partners, select a site
for the shelter and will notify additional Red Cross workers.

Page 61 provides the key elements of a chapters disaster plan and

annex for providing Mass Care shelter services. You can use this page to
take notes as I describe the specific procedures used in our chapter for
each of the topics that are listed.
Page 61

NOTE: As a part of course preparation, read over page 61 and

make some notes about key elements of the Mass Care/Community
Services section of the units disaster plan. Use these notes to review
page 61 with the group. Answer questions as needed.

With this brief review of our units disaster plan, you can see how the
community and the chapter are prepared for disaster.

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Overview of Shelter Operations

We have looked at the planning and preparation that occurs prior to

a disaster, and weve talked about how your chapter responds to get a
shelter site selected and workers on the way. In the next segment, we will
see how shelters teams go to work organizing and opening the shelter.

BREAK: 10 minutes ----------------------------------------------------

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Instructors Manual

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Segment

Organizing the Shelter

III. ORGANIZING THE SHELTER

Time: 25 minutes

As a result of this segment, participants should be able to describe the

actions needed to organize and open a shelter.

Based on the type of disaster, number of evacuees expected, estimated

length of time that the shelter will be needed, and the chapters disaster plan the
chapter will select a shelter facility and notify you of your assignment. We briefly
reviewed these procedures when we looked at the chapters disaster plan. Now

Page 62

lets watch segment 2 of the video, and see how the shelter team goes into action
and prepares to open the shelter.
NOTE: Show segment 2 of video, Organizing the Shelter.

A.

Segment 2

Functions on a Shelter Team

As you recall from Community Services (Mass Care): An Overview,

shelter workers pull together as a team to fulfill key responsibilities in the shelter.
One of the first tasks of the shelter manager will be to organize the team and
assign the key responsibilities as described briefly on pages 63 and 64. For
each responsibility listed, there is a detailed checklist in the In the Field section

Page 63

of your workbook. These checklists provide detailed information to ensure that

quality service provided. These checklists can also be used to provide job
inductions to persons you have identified to carry out these roles. Lets look at
the Shelter Managers Responsibilities Checklist on page 5.

Shelter Operations
Instructors Manual

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Segment

Organizing the Shelter

NOTE: Briefly review the checklist with the group. Point out the
specific duties and the structure of the checklist. This will be the only
checklist this course will review. Point out the checklists for the
other key shelter staff.

Registration Responsibilities Checklist

Feeding Responsibilities Checklist

Dormitory Management Responsibilities Checklist

Providing Information Responsibilities Checklist

Disaster Health Services Responsibilities Checklist

Disaster Mental Health Services Responsibilities Checklist

Other Client Services Responsibilities Checklist

Communications Responsibilities Checklist

Staff Recruitment and Placement Responsibilities Checklist

Material Support Services Responsibilities Checklist

Depending on the size of the disaster and the number of staff

available, you may be responsible for one of these roles or several at
one time. You may have others who can assist you. Shelter residents
come from all walks of life and will be capable of performing various
responsibilities. As you register people coming into the shelter, it is a
good idea to identify their special skills on the registration card. Are
there any questions about how to use the checklists?

Segment 3-2

?
ARC 3068-11
Rev. September 2005

Segment

B.

Organizing the Shelter

STEP 3: Pre-occupancy Inspection

Another top priority is working with the facilitys representative to

assess the condition of the facility and any special safety considerations. A
Facility Agreement (Form 6621) must be negotiated and signed prior to

Page 65

the disaster or at the time that the Red Cross occupies the building.
Depending on the situation, someone from the Material Support Services
group and/or someone from the shelter management team will ensure the
completion of this process. The Facility Agreement specifies the responsibilities of both the owner and the Red Cross during the time the Red
Cross is using the premises. Use the Self-Inspection WorksheetOffPremises Liability Checklist (Form 6505) when you walk through the
building with the facilitys representative. This pre-occupancy inspection
will give you a good feel for which rooms or areas should be allocated for
specific purposes and equipment or supplies that may need to be moved
or secured.

Which shelter workers values do you think are the basis for the preoccupancy inspection?

NOTE: Allow time for responses. Refer to page 56 in the workbook

if necessary. Safety is the primary value behind the pre-occupancy
inspection. We also want the shelter to provide a good environment

Page 56

for the clientsvalue of respect, and we dont want to pay for unnecessary damagesusing resources wisely.

Shelter Operations
Instructors Manual

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Organizing the Shelter

On page 66 are some guidelines for allocating space.

As you think about allocating space, try to have separate sleeping areas

Page 66

for families with young children, elderly people, single men, and/or single
women. Plan areas where children can play, where families can watch TV
or get the latest disaster information, and a place where snacks and
beverages will be available 24 hours a day. Think about how you might
make accommodations for people with disabilities. Allocating shelter
space is one priority. Assigning staff to key responsibilities is another.

C.

Staffing a Shelter
A shelter must be staffed 24 hours a day. There is one shelter

manager per shelter who is responsible for the overall running of the

Page 67

shelter. This person works one shift. There are three shift supervisors who each take a shift so that there is always a supervisor on duty.
Other workers are scheduled as available. There is a flurry of activity
initially as the shelter opens, but this quickly levels out as the shelter
establishes a routine and residents begin returning to their homes.
The peak activity often occurs around meal times and in the evenings as
people return to the shelter after cleaning their homes or going to work. It
is important to try to balance the need for staff with the need to give staff
time away from the shelter to rest.

Which shelter workers value is the basis for staffing a shelter this
way?

Segment 3-4

?
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Segment

Organizing the Shelter

NOTE: Allow time for responses. The safety and health of both
staff and clients is the reason for this staffing pattern. Working for
long periods of time without rest can lead to poor judgment.

D.

Registration

Client registration is very important. In our opening activity, we learned

that registration gives us information such as how many clients are in the

Page 68

shelter, their names, and special needs they may have. The Red Cross
signage on the outside of the building should direct the clients to one
entrance. You should set up the registration area inside this entrance.
Allow enough room so that clients can form a line without waiting outside.
Try to have everyone register as they come into the shelter for the first
time. Once people are in the shelter, it becomes more difficult to determine who hasnt registered, which may delay identifying individuals. For
this reason, setting up the registration area is one of the first tasks. If
possible, the shelter shouldnt be opened without the registration process
in place.

E.

STEP 4: Shelter Opens

If a chapter is warned early enough that a shelter might be needed, the

shelter team may arrive at the facility, organize the team and materials, and

Page 69

open the shelter before any clients arrive. This isnt always the case. If
the community has used the facility as a shelter before, clients may go to
the facility at the first threat of disaster and arrive before the Red Cross. If
this is the case, open the building, and have the clients come in. Get
organized as quickly as possible; some of the clients may volunteer to help
you. Do the best that you can. The shelter is a small community, and you
and the clients are all it in together.
Shelter Operations
Instructors Manual

Segment 3-5

Segment

F.

Organizing the Shelter

STEP 5: Clients Arrive

Once the clients start to arrive, we do everything we can to make their stay at
the shelter as safe and pleasant as possible. We also try to provide them with
information about the services available through the Red Cross and other
organizations to assist them with their recovery. These activities are the focus of
the next segment, Operating the Shelter.

Segment 3-6

ARC 3068-11
Rev. September 2005

Segment

Operating the Shelter

IV. OPERATING THE SHELTER

Time: 40 minutes

As a result of this segment, participants should be able to

Describe the actions needed to maintain a safe, comfortable

shelter environment for shelter residents.

Identify resources available to assist in running the shelter.

Each checklist describes the ongoing actions needed to keep the

shelter running smoothly once its open, but there is more to operating a shelter than a series of checklists. A well run shelter requires a
dedication to quality service, communication and coordination, and
lots of problem solving. A successful shelter also takes communica-

Page 70

tion and cooperation between the Red Cross as an organization, the

shelter team, and the shelter residents. Lets watch segment 3 of the
video and see how shelter workers come together as a team to keep
the shelter operating smoothly.
Segment 3

NOTE: Show segment 3 of video, Operating the Shelter.

Do you have any questions about the video?
NOTE: Pause for questions and clarify as needed.

Shelter Operations
Instructors Manual

?
Segment 4-1

Segment

A.

Operating the Shelter

The Three Rs of Sheltering

Think back to Community Services (Mass Care): An Overview. What

Page 71

are the Three Rs of Sheltering?

NOTE: Bring out if participants do not

Respect
Routines
Rules

The shelter team uses these to help build a sense of community

within the shelter and to prevent some problems before they occur.
We have already discussed respect for clients as a fundamental value
for shelter workers. Lets look at establishing routines and setting
rules in the shelter.

1.

Establishing Daily Routines

In addition to showing respect for clients, there are other things

shelter workers can do to demonstrate quality service. During the
first 24 hours that the shelter is open, the staff should establish a
routine to help structure the daily life of the staff and residents until
the shelter closes. What aspects of shelter life can be used to establish a daily routine?

Segment 4-2

?
ARC 3068-11
Rev. September 2005

Segment

Operating the Shelter

NOTE: Bring out if participants do not:

Meals times
Lights out
TV time
Shower schedule
Childrens activities
Information updates
Shelter staff meetings
Shelter advisory committee meetings
2.

Setting Rules
In addition to rules that are part of a daily routine, what types of

ground rules would you need to ensure a safe and pleasant shelter
environment?

NOTE: List items on newsprint. Bring out if the group does not:
Smoking areas

Rules

No food or beverages (except water) in the sleeping areas

Noise levels

Restricted areas
Phone use
Signing in and out

Shelter Operations
Instructors Manual

Segment 4-3

Segment

Operating the Shelter

Drug and alcohol use

Weapon possession
Pets
Valuable possessions

NOTE: After developing the list on newsprint, review page 51,

Shelter Resident Information, with the group. Ask if there is anything

Page 51

participants would like to add.

Which shelter workers value is the basis for setting rules?

NOTE: Allow time for responses. Safety is the reason shelter teams
set rules.

B.

The Importance of Communication

Communication both within the shelter and with the outside world affects
the welfare of the shelter residents. They must be informed of the schedule, the rules, and other in-shelter information. They must also have

Page 72

current information about what is happening outside the shelter. People

affected by a disaster will have a very high need for information. In the
absence of factual information, rumors can run rampant.

Segment 4-4

ARC 3068-11
Rev. September 2005

Segment

Operating the Shelter

Another element of communication is sharing information with

members of the shelter management team. Staff meetings provide an
opportunity to solve problems, strengthen team spirit, and ensure that all
members of the team understand their interrelated roles. Individual
conferences are appropriate when privacy is required to coach a team
member on his or her work, when a staff member has a personal problem,
or when discussing the confidential problems of a client.

The responsibilities for good communication in the shelter rests with

the shelter manager, but all the staff play a part. For future reference, the
information on pages 73 and 74 and the Providing Information Checklist

Page 73-74, 17

on page 17 will help keep the shelter residents informed and control
rumors as well as improve staff communications.

C.

Communication With the Chapter

Another side of communication concerns the world outside of the shelter.

This includes reports to and requests of the chapter or the disaster relief
operations headquarters.
During the course of shelter operations, the shelter manager is
required to submit information to the chapter. This information is vital. It
is used to anticipate the need for staff, supplies, and additional shelters.
Some of this information is given informally over the phone or radio.
Once the shelter is open, the shelter manager should call the headquarters
and provide them with the following information:
Name of the building
Street address
Shelter Operations
Instructors Manual

Segment 4-5

Segment

Operating the Shelter

Name of shelter manager

Best phone number (or contact method) to reach shelter staff
Number of clients present and anticipated
Initial assessment of situation and any information that might indicate
another shelter is needed.
The chapter may already have some of this information, but things
change quickly in a disaster, and getting accurate information is important.

You will receive directions on the operation for submitting reports to

the chapter. These directions will include what needs to be reported,
when to report it, and who needs the report. At a minimum, each day you
should contact the chapter and give them the number of clients staying in
the shelter, the number of meals served, and make any requests that you
may have.

What kinds of requests might you make of the chapter?

NOTE: Bring out if the group does not:

Additional staff
Supplies
Equipment
Food

Segment 4-6

ARC 3068-11
Rev. September 2005

Segment

Operating the Shelter

Vehicles
Resources from other agencies
Information regarding services for shelter residents
Information regarding the current status of the DRO response.

D.

Working With the Media

The media are another important group that we communicate with

Which value is of greatest concern when it comes to working with the

media?

NOTE: Allow time for responses. Respect for clients is the primary
concern, but we also rely on the assistance of the media to help us
get resources.

We do have to protect the privacy of our clients, but the media help
us fulfill our commitment of providing sheltering by letting clients know
what services are available, so its important that we work to establish a
good relationship with the press. Shelters often draw intense media
interest because they are highly visible sites showing the affects of the
disaster and the community response. Shelter operations are an opportunity for local chapters to demonstrate how well they are able to respond
to disasters. This visibility communicates to the members of the community that the Red Cross is an efficient, caring organization ready to come to
their aid. You should be prepared for the media to show up at your
Shelter Operations
Instructors Manual

Segment 4-7

Segment

Operating the Shelter

shelter. They should be given reasonable access to the shelter, and after
being given some basic ground rules about client privacy, provided with a
worker to escort them within the shelter. The shelter manager working
with Communications and Marketing staff or the chapter Public Affairs
representative should determine who will be the media point of contract at
the shelter. Page 41 provides some further information about working

Page 41

with the media.

NOTE: Review a few key points from this page.

E.

Forms
One final way that we communicate is through the use of forms.

Forms can assist shelter workers in documenting the conversations

they have had with facility owners, the activities of the shelter, and in
making requests for resources. Keep in mind that during large
disasters, when many shelters are opening at once, the chapter or
disaster headquarters may not be able to fill your requests right away.
On pages 44-45 of your workbook is a list of the forms commonly

Pages 44-45

used in sheltering. Lets quickly review those now.

NOTE: Review pages 44-45.

Your supervisor will give you additional guidance about when and
how to use these forms.

Thinking back to our values, which one goes with coordinating with
the chapter and completing paperwork in a timely and accurate way?
Segment 4-8

?
ARC 3068-11
Rev. September 2005

Segment

Operating the Shelter

NOTE: Allow time for responses. These help us use resources wisely.

F.

Transitioning to Longer-Term Sheltering

Large, destructive, or prolonged disasters often require that shelters open

for only a few days be shifted to longer-term shelters. This occurs through
close coordination with the chapter or headquarters. The Red Cross is

Page 75

set up so that the first response to a disaster occurs within the local
community. If the disaster exceeds the capabilities of the local chapter,
human resources and material support would be mobilized from outside
the local community. The chapter works in collaboration with their service
area and/or national headquarters to determine their needs and how to
meet them.

You may be asked to open and operate your shelter for the first 72
hours or so. In a large disaster, this is the amount of time it will take to get
additional staff and materials en route to your shelter. This may take a
little longer if the disaster has affected transportation routes.

These first three days will be exhausting, and you will have made many
decisions and put a lot of personal energy into the way the shelter is running.
Sometimes the transition to a longer-term shelter can be a difficult one. When
you are tired and youve made such a personal investment in a shelter, it can be
difficult not to bristle at the suggestions of well-rested workers who have just
arrived and havent seen the development of the shelter and the disaster situation.
It is important to remember that just life you, these new workers are there to

Shelter Operations
Instructors Manual

Segment 4-9

Segment

Operating the Shelter

make sure that the clients get the highest quality service. They are also there to
give you a chance to get some rest or return to other family or work obligations.

If you are the new worker, remember to be sensitive to the feelings of those
staff who have been operating the shelter. Be sure to respect their efforts and the
long hours they have put into the relief operation.

In this segment we have looked at the actions needed to maintain a safe,

comfortable environment for shelter residents until they are able to return to their
homes or find alternate housing.
As the residents are able to leave the shelter, it is time to make plans for
concluding shelter operations. This is the topic of our next segment.

BREAK: 10 minutes ---------------------------------------------------------

Segment 4-10

ARC 3068-11
Rev. September 2005

Segment

Concluding Shelter Operations

V. CONCLUDING SHELTER OPERATIONS

Time: 10 minutes

As a result of this segment, participants should be able to identify the

actions needed to conclude shelter operations.
In our last segment of the video, we will see the actions of the shelter team
as they prepare for and close down the shelter.

Page 76

NOTE: Show segment 4 of video, Concluding Shelter Operations.

Do you have any questions about the video?

NOTE: Pause for questions and clarify as needed.

A.

Segment 4

STEP 7: Closing the Shelter

Plans for concluding shelter operations begin as the shelter population

declines and residents are making plans to leave the shelter. Shelters can
begin the closing process when it is clear that all residents have made
arrangements for a place to go. You may request that Client Caseworkers
come to the shelter, or encourage families to go to the service center or

Page 77

contact the chapter for assistance. Individual Client Services will work
with these families and with other community resources to find suitable
housing.

Shelter Operations
Instructors Manual

Segment 5-1

Segment

Concluding Shelter Operations

The main actions needed to close the shelter are included in the
shelter managers checklist. Please turn back to page 8, and we will

Page 8

review these actions as a group.

NOTE: Review page 8 with the group. Ask for questions and clarify
information as needed.

To support these actions, each of the key responsibility checklists

includes tasks for closing.

B.

STEP 1: Preparedness

To bring us full circle in our shelter cycle, we go back to preparedness. A

part of concluding shelter operations is identifying the lessons learned
during the operation. These lessons can then be used to improve our
response to the next disaster. Page 49 identifies other disaster prepared-

Page 49

ness actions needed to ensure a high-quality disaster response. Please

turn to it now and we will review it together.

NOTE: Review key points with the group. Ask for questions and
clarify information as needed.

You can see that concluding shelter operations brings us full circle in
the cycle of disaster preparedness and response. As our course comes to
closure, Id like to take a few minutes to allow you to practice using your
workbook as a resource and to apply some of what we have covered
today.

Segment 5-2

ARC 3068-11
Rev. September 2005

Segment

Summary

VI. SUMMARY

Time: 20 minutes

As a result of this segment, participants should be able to describe their

accomplishment of the learning objectives for the course.

We have covered a lot of material, and we dont expect you to

remember it all or to memorize all the checklists. It is important that
you have a sense of the information contained in your workbook, and
that you feel confident that you know how to get your questions
answered when you are on assignment. Lets practice using the
workbook as a resource manual. Id like for you to work in groups of
four or five. On page 78 there are four situations.

Page 78

NOTE: Break the class into four groups. Assign each group one
question.

Starting with the scenario you were assigned, complete all four
questions. Working your groups, use your workbooks to decide how
you might handle the situation. You will have about 5 minutes, then
the spokesperson for your group will explain your answer to the
class.

Shelter Operations
Instructors Manual

Segment 6-1

Segment

Summary

NOTE: Have each group report out the answer for their situation.
Use page 9 from Instructors Resources, Answers to Summary Exer-

Answer to
Summary
Exercise

cise, to bring out any points the groups may have missed.

This brings us to the end of our course. We have covered quite a bit
of material today, and your workbook contains more material for you to
read at your leisure. As you leave todays class Id like for you to remember three things:
1.

You can always go to your supervisor for support.

2.

In making any decision, rely on the shelter values to guide you.

3.

Take your workbook with you on assignment. The checklists will

guide you through many of the circumstances you will encounter.

As you can see from this course, the process of opening, operating,
and closing a shelter is a demanding assignment. Being prepared will
make it a positive experience for the staff and the residents. A successful
shelter operation can demonstrate how a community can work together to
meet the challenge of providing a safe place for people to stay during the
threat of, or the aftermath of, a disaster.
Thank you for participating today. As a final task, please complete
your course evaluation on page 79. When you bring this forward, we will
present you with your certificate.
Page 79

Segment 6-2

ARC 3068-11
Rev. September 2005

Instructors Resources Contents

Instructors Resources

Shelter Operations
Instructors Manual

A.
B.
C.
D.

List of Materials ......................................................................... 3

Suggested Newsprint ................................................................. 5
Course Schedule ....................................................................... 7
Answers to Summary Exercise ................................................... 9

This page intentionally left blank

Instructors Resource A

List of Materials

1. Participant Materials (one for each participant)

ARC 3068-11A Shelter Operations Participants Workbook
ARC 3041
Mass CarePreparedness and Operations
Form 5972
Disaster Shelter Registration; Revised 5/03

2. Instructor Materials
ARC 3068-11CD Shelter Operations course CD, which includes the following:
Shelter Operations Instructors Manual (ARC 3068-11)
Instructors Resources
Participants Workbook (ARC 3068-11A)
ARC 3068-11V Shelter Operations Video
Poster 955
Shelter Cycle and Shelter Values
Prepared newsprint

3. Materials Provided by Sponsoring Red Cross Unit

1 each

Form 5898A

Instructor ReportDisaster Training System

2 each

Form 6418A

Course Record Addendum

22 each

Cert. 108A

Certification of Completion for BasicIntermediateAdvanced

Disaster Services Training

22 each

Name tags and name tents

Tables and chairs for 20 participants and 1 instructor

1 roll

Masking tape

Easel for newsprint pad

1 pad

Blank newsprint

6 each

Felt marking pens, chisel-point, assorted colors

VHS videocassette player and monitor

Shelter Operations
Instructors Manual

Instructors Resource A

List of Materials

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Shelter Operations
Instructors Manual

Instructors Resource B

SUGGESTED NEWSPRINT

No.

Temp.

Perm.
X

Contents
Welcome to Shelter Operations Course (ARC 3068-11)
Your instructors are:

Hazards

Rules

Shelter Operations
Instructors Manual

Instructors Resource B

SUGGESTED NEWSPRINT

No.

Temp.

Perm.

Contents

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Shelter Operations
Instructors Manual

Instructors Resource C

COURSE SCHEDULE

Who

Time Allotted

Course Topics

Page

Course Content
35 minutes

I. INTRODUCTION AND PURPOSE OF TRAINING ........... 1-1

A. Instructor Introductions ..................................................... 1-1
B. Course Purpose ................................................................ 1-2
C. Objectives ........................................................................ 1-3
D. How This Course is Organized .......................................... 1-3
E. Participant Introduction ...................................................... 1-5

35 minutes

II. OVERVIEW OF SHELTER OPERATIONS ......................... 2-1

A. Values for Shelter Workers ................................................ 2-2
B. The Shelter Cycle .............................................................. 2-3
C. STEP 1: Preparedness ..................................................... 2-4
D. STEP 2: Disaster Occurs ................................................... 2-8

10 minutes
25 minutes

10 minutes
20 minutes

10 minutes

Shelter Operations
Instructors Manual

Break
III. ORGANIZING THE SHELTER ............................................ 3-1
A. Functions on a Shelter Team ............................................... 3-1
B. STEP 3: Pre-occupancy Inspection ................................... 3-3
C. Staffing a Shelter ............................................................... 3-4
D. Registration ....................................................................... 3-5
E. STEP 4: Shelter Opens ..................................................... 3-5
F. STEP 5: Clients Arrive ....................................................... 3-6
Break
IV. OPERATING THE SHELTER .............................................. 4-1
A. The Three Rs of Sheltering ................................................. 4-2
B. The Importance of Communication .................................... 4-4
C. Communication With the Chapter ...................................... 4-5
D. Working With the Media ................................................... 4-7
E. Forms ............................................................................... 4-8
F. Transitioning to Longer-Term Sheltering .............................. 4-9
Break

Instructors Resource C

COURSE SCHEDULE

Who

Time Allotted

Course Topics

Page

10 minutes

V. CONCLUDING SHELTER OPERATIONS ............................ 5-1

A. STEP 7: Closing the Shelter ................................................ 5-1
B. STEP 1: Preparedness....................................................... 5-2

20 minutes
_____________

VI. SUMMARY ............................................................................ 6-1

2 Hours and 55 minutes

Shelter Operations
Instructors Manual

ANSWERS TO SUMMARY EXERCISE

1.

The person responsible for staff recruitment and placement should consult with the shelter manager. This
person may be able to get assistance from shelter residents. If not, the shelter manager may request
additional staff from the chapter, and/or may have the staffing person recruit from the community.
Staff Recruitment and Placement Responsibilities Checklist p.28 and Shelter Managers Responsibilities Checklist p.6

2.

It may be possible to hae meals prepared at another Red Cross kitchen facility or to purchase restaurantprepared meals. If preparing meals on site, use canned or ready-to-cook foods rather that fresh foods that
require more preparation room. Consult the shelter manager who can coordinate with the chapter.
Feeding Responsibilities Checklist pp. 13-14

3.

Explain tactfully that the Red Cross cannot accept the used clothing, since we do not have the facilities or
staff to launder the items. We provide disbursing orders to clients which enable them to select and purchase clothing from local merchants. This helps the clients as well as the local economy. We could,
however, make an announcement that the church had clothing available.
Donations p. 41

4.

The person in charge of logistics should complete a Disaster Supply Requisition (Form 6409) and submit it
to the shelter manager for approval and forwarding to the chapter.
Material Support Services Responsibilities pp. 32-33

Shelter Operations
Instructors Manual

Instructors Resource C

COURSE SCHEDULE

Who

Time Allotted

Course Topics

Page

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Instructors Manual

10